[Congressional Record Volume 171, Number 146 (Monday, September 8, 2025)]
[House]
[Pages H3872-H3874]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]
MENTAL HEALTH IN AVIATION ACT OF 2025
Mr. BARRETT. Mr. Speaker, I move to suspend the rules and pass the
bill (H.R. 2591) to require the Administrator of the Federal Aviation
Administration to revise regulations for certain individuals carrying
out aviation activities who disclose a mental health diagnosis or
condition, and for other purposes, as amended.
The Clerk read the title of the bill.
The text of the bill is as follows:
H.R. 2591
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Mental Health in Aviation
Act of 2025''.
SEC. 2. REGULATIONS FOR INDIVIDUALS CARRYING OUT AVIATION
ACTIVITIES.
(a) In General.--Not later than 2 years after the date of
enactment of this Act, the Administrator of the Federal
Aviation Administration shall update regulations, including
in part 67 of title 14 of Code of Federal Regulations, as
appropriate, to encourage individuals to--
(1) seek help for mental health conditions or symptoms of
mental health conditions; and
(2) disclose conditions or symptoms described in paragraph
(1).
(b) Consultation; Report Requirements.--Section 411(d) of
the FAA Reauthorization Act of 2024 (49 U.S.C. 44703 note(d))
is amended--
(1) in paragraph (4)--
(A) in subparagraph (A) by striking ``and'' at the end;
(B) in subparagraph (B) by striking ``and'' at the end;
(C) in subparagraph (C) by striking the period at the end
and inserting a semicolon; and
(D) by adding at the end the following:
``(D) a review and evaluation of any recommendations
reached by the National Transportation Safety Board related
to aviation workforce mental health; and
``(E) a description of relevant clinical studies, research,
diagnostic manuals, and protocols used by the licensed
professionals as of the date of enactment of this Act.''; and
(2) by adding at the end the following:
``(5) Consultation.--In carrying out this subsection, the
task group shall consult with relevant stakeholders from the
aviation and medical communities, as necessary, including--
``(A) the certified exclusive bargaining representatives of
air traffic controllers of the Administration certified under
section 7111 of title 5, United States Code;
``(B) organizations representing certified collective
bargaining representatives of airline pilots;
``(C) aviation medical examiners, as described in section
183.21 of title 14, Code of Federal Regulations; and
``(D) any other stakeholder determined relevant by the task
group, including any stakeholders described in paragraph
(3)(B).''.
(c) Implementation.--
(1) In general.--Not later than 180 days after the
submission of the report required under section 411(f) of the
FAA Reauthorization Act of 2024 (49 U.S.C. 44703 note), the
Administrator shall take such actions as are necessary to
implement the mental health-related recommendations of such
report.
(2) Justification.--If the Administrator decides not to
implement any of the recommendations described in paragraph
(1), the Administrator shall submit to the appropriate
committees of Congress the justification for such decision.
SEC. 3. ANNUAL REVIEW OF MENTAL HEALTH SPECIAL ISSUANCE
PROCESS.
The Administrator shall conduct an annual review, and
update, as appropriate, the applicable regulations, policies,
orders, and guidance on mental health-related special
issuance for pilots and air traffic controllers to--
(1) reclassify and approve additional medications that may
be safely prescribed to airmen to treat mental health
conditions;
(2) improve mental health knowledge and training for
aviation medical examiners;
(3) if the Administrator determines appropriate, delegate
additional authority to aviation medical examiners consistent
with the recommendation of the Mental Health Aviation
Rulemaking Committee described in section 5; and
(4) improve the special issuance process for pilots and air
traffic controllers.
SEC. 4. AUTHORIZATION OF APPROPRIATION FOR ADDITIONAL
AVIATION MEDICAL EXAMINERS.
Of the amounts made available pursuant to section 106(k)(1)
of title 49, United States Code, the Administrator shall set
aside $13,740,000 for each of fiscal years 2026 through 2028
to--
(1) recruit, select, train, and delegate the necessary
authorities to additional aviation medical examiners and
human intervention motivation study aviation medical
examiners, including those who are psychiatrists;
(2) expand capacity to provide oversight of aviation
medical examiners and clear the backlog of special issuance
requests and cases awaiting review at the Office of Aerospace
Medicine; and
(3) support any other related activities, as the
Administrator determines appropriate.
SEC. 5. IMPLEMENTATION OF AVIATION RULEMAKING COMMITTEE
RECOMMENDATIONS.
(a) In General.--Not later than 2 years after the date of
enactment of this Act, the Administrator shall implement, to
the greatest extent practicable, the recommendations of the
Mental Health and Aviation Medical Clearances Aviation
Rulemaking Committee which were submitted to the
Administrator on April 1, 2024.
(b) Consultation.--In carrying out subsection (a), the
Administrator shall consult with the parties described in
section 411(d)(5) of the FAA Reauthorization Act of 2024 (as
added by this Act).
(c) Justification.--If the Administrator decides not to
implement any of the recommendations described in subsection
(a), the Administrator shall submit to the appropriate
committees of Congress the justification for such decision.
SEC. 6. PUBLIC INFORMATION CAMPAIGN.
(a) In General.--Of the amounts made available under
section 106(k)(1) of title 49, United States Code, the
Administrator shall set aside $1,500,000 for each of fiscal
years 2026 through 2028 for a public information campaign or
similar public education efforts to destigmatize individuals
in (or interested in joining) the aviation industry who seek
mental health care, to broaden awareness of available
supportive services, and establish trust with pilots and air
traffic controllers.
(b) Report.--Not later than 1 year after the Administrator
creates the public information campaign described in
subsection (a), the Administrator shall submit to appropriate
committees of Congress a report describing the actions taken
to develop such campaign and the plans for implementation.
SEC. 7. DEFINITIONS.
In this Act:
(1) Appropriate committees of congress.--The term
``appropriate committees of Congress'' means--
(A) the Committee on Transportation and Infrastructure of
the House of Representatives; and
(B) the Committee on Commerce, Science, and Transportation
of the Senate.
(2) Special issuance.--The term ``special issuance'' has
the meaning given the term in section 67.401 of title 14,
Code of Federal Regulations.
The SPEAKER pro tempore. Pursuant to the rule, the gentleman from
Michigan (Mr. Barrett) and the gentleman from Alabama (Mr. Figures)
each will control 20 minutes.
The Chair recognizes the gentleman from Michigan.
General Leave
Mr. BARRETT. Mr. Speaker, I ask unanimous consent that all Members
may have 5 legislative days in which to revise and extend their remarks
and include extraneous material in the record on H.R. 2591, as amended.
The SPEAKER pro tempore. Is there objection to the request of the
gentleman from Michigan?
There was no objection.
Mr. BARRETT. Mr. Speaker, I yield myself such time as I may consume.
Mr. Speaker, I rise in support of H.R. 2591, the Mental Health in
Aviation Act.
I thank Mr. Casten, Mr. Stauber, Ranking Member Larsen, and Mr. Mann
for their work on this legislation and leadership on this important
issue.
Mr. Speaker, one in four Americans today deal with mental health
challenges over the course of their lifetime. We need to make sure
pilots get the help they need and still keep flying.
This legislation is intended to reduce the barriers preventing
pilots, air traffic controllers, and other aviation professionals from
reporting and seeking mental health care.
The bill builds on the bipartisan work of the Transportation and
Infrastructure Committee from last Congress to hold the Federal
Aviation Administration accountable to Congress
[[Page H3873]]
and the Aeromedical Innovation and Modernization Working Group that we
created in the FAA Reauthorization Act of 2024.
Additionally, H.R. 2591 requires the FAA to annually review the
process of mental health-related special issuances for pilots and air
traffic controllers and strengthen the hiring of medical examiners to
clear the backlog of special issuance requests.
Mr. Speaker, I urge support of this legislation, and I reserve the
balance of my time.
Mr. FIGURES. Mr. Speaker, I yield myself such time as I may consume.
Mr. Speaker, I rise in support of H.R. 2591, the Mental Health in
Aviation Act of 2025, a bill that would modernize the Federal Aviation
Administration's outdated policies and remove barriers to lifesaving
mental health care for the aviation workforce.
As we continue to navigate the aftermath of traffic aviation
accidents and harrowing near misses across this country, we must
support the mental health of the dedicated women and men on the front
lines of ensuring the traveling public reaches their final destination
safely every day.
For far too long, many aviation professionals suffer in silence. That
silence is because of the fear that disclosing a mental health
diagnosis or treatment could derail their careers, possibly ending it.
Many of us in Congress have heard from our constituents about the
FAA's difficult aeromedical process. We have spoken to overworked air
traffic controllers about the consequence of mounting job pressures. We
have seen qualified airline pilots grounded for months, in some cases
even years, due to delays with FAA medical clearance reviews.
{time} 1650
With the 2024 FAA reauthorization as a blueprint, the Mental Health
in Aviation Act will do several things.
It will direct the FAA to annually review and update its mental
health-related policies for pilots and air traffic controllers, in
consultation with key stakeholders.
It requires the agency to implement recommendations from the aviation
workforce mental health task group established under the 2024 FAA
reauthorization law.
It will make significant, robust investments in the FAA's recruitment
and training of aviation medical examiners, particularly those with
mental health expertise.
Finally, this legislation will establish a public information
campaign to help destigmatize mental health in U.S. aviation, among
other key reforms.
The FAA's mental health protocols must evolve to foster an
environment where the aviation workforce feels supported to seek the
resources and care that they need, and the Mental Health in Aviation
Act will do just that.
Mr. Speaker, I thank Representatives Casten, Stauber, and Mann for
their leadership on this, as well as their staff for their hard work on
this important issue.
H.R. 2591 was unanimously approved in the T&I Committee in June, and
it is endorsed by several key stakeholders, including U.S. airlines,
air traffic controllers and pilot unions, the general aviation and
business aviation industries, first responders, and many others.
Mr. Speaker, I encourage my colleagues to join us to support H.R.
2591, and I urge the Senate to quickly take up this bill to help
provide the resources our aviation workforce desperately needs and
deserves. I reserve the balance of my time.
Mr. BARRETT. Mr. Speaker, I yield 5 minutes to the gentleman from
Minnesota (Mr. Stauber).
Mr. STAUBER. Mr. Speaker, currently, pilots and air traffic
controllers who seek mental health care are unfairly penalized. While
aviation professionals are mandated to report if they seek mental
health care, once they take that step, they are faced with delays,
confusion, and broad regulations to return to work. This often means
that relatively minor mental health concerns result in long wait times
and derailed careers for safe and well-trained pilots and air traffic
controllers.
If we don't change how we handle mental health in aviation, then we
will exacerbate a culture of silence.
When I was a law enforcement officer, we, too, faced a culture of
silence. During a shift, we would see the worst of humanity, and then
we went home to our loved ones and pretended everything was okay. That
is because if you didn't, Mr. Speaker, you thought you would come off
as weak or unable to handle the job.
As a former police officer who required professional help after a
specific call for service, I understand the importance of seeking help.
It is not a sign of weakness.
Like law enforcement officers, our pilots and air traffic controllers
cannot fear that their livelihoods are at stake for taking care of
themselves. These efforts are what keep skies safe in the first place.
In December 2023, the FAA recognized the need to reform its current
policies and established the Mental Health and Aviation Medical
Clearances Aviation Rulemaking Committee, or ARC, to identify barriers
to mental health care for aviators and present recommendations to the
FAA to address these challenges.
The implementation of these recommendations was directed in section
411 of the FAA reauthorization bill we passed last year. Unfortunately,
there was no required timeline for implementation, which is why I have
introduced legislation with Congressman Casten, the Mental Health in
Aviation Act, to ensure the timely implementation of section 411.
We want our pilots to be at the top of their game, and taking care of
their mental health is critical to achieving that goal.
Mr. Speaker, I want to personally thank my colleague and friend,
Representative Casten of Illinois, for his tremendous and strong
leadership on this piece of legislation, and I ask all of my colleagues
to join me in supporting this legislation.
Mr. FIGURES. Mr. Speaker, I yield 3 minutes to the gentleman from
Illinois (Mr. Casten).
Mr. CASTEN. Mr. Speaker, I rise in support of the bipartisan Mental
Health in Aviation Act, which I introduced with my friend, Mr. Stauber,
from Minnesota.
I thank Congressman Stauber as well as Chairman Graves and Ranking
Member Larsen for all of their support and close collaboration on this
bill.
Today, pilots and air traffic controllers who seek mental health care
are unfairly penalized by a system that perpetuates a culture of
silence. Current regulations mandate that if they seek care, then they
are immediately grounded for a minimum of 6 months, and then they are
still faced with delays, confusion, and overbroad regulation in the
process of returning to work.
This often leaves the folks who are tasked with keeping our skies
safe with an absolutely terrible choice, Mr. Speaker: Get help but put
your career and your paycheck on hold, or keep your career on track and
just hope you will get better.
It doesn't make our skies safer, but it does lead to horrible and
avoidable tragedies.
It hit home for me when a Chicago family told me about their son who
was studying to become a pilot, and he took his own life. He knew that
he needed help, but he didn't want to be grounded. That young man would
still be here today but for these regulations that gave him fear when
he needed care.
Since working on this bill, I have heard too many nearly identical
stories from pilots, students studying to be pilots, and air traffic
controllers, their coworkers, and their families.
As many have mentioned, in December 2023, the FAA finally recognized
the need to reform those current policies and established a committee
to identify barriers to mental health care for aviators to present ways
for the FAA to address those challenges. Their recommendations included
limiting disclosure requirements for low-risk psychotherapy and
expanding the use of existing peer-support programs, but it didn't
mandate those changes, nor did it provide necessary implementation
resources.
This bill finishes that job by requiring the FAA to implement those
changes within 2 years, to regularly review and improve processes
related to mental health, and to ensure the FAA can successfully
implement and publicize those rules. This will
[[Page H3874]]
destigmatize mental health care to make our pilots healthier and our
skies safer.
I am proud that this bipartisan legislation is widely supported in
Congress and also by the aviation community, airlines, pilot unions,
and air traffic controllers.
Mr. Speaker, I urge my colleagues to support it.
Mr. FIGURES. Mr. Speaker, I support the Mental Health in Aviation
Act, and I recommend my colleagues do the same. It is an important
piece of legislation that will work to better the lives and better the
safety of our aerospace professionals.
Mr. Speaker, I yield back the balance of my time.
Mr. BARRETT. Mr. Speaker, I yield myself the balance of my time.
Mr. Speaker, mental health issues are often underreported, and many
times those who do not report an issue face difficulty accessing care
because of burdensome regulations and lengthy wait times for aviation
professionals to return back to work.
H.R. 2591 encourages and enables aviation professionals to report and
access critical mental health care. Additionally, this bill will
strengthen the FAA's hiring of medical examiners to help clear the
backlog of special issuance requests.
As you heard today, Mr. Speaker, this bill will keep pilots flying,
air traffic controllers working, and airspace safe while getting people
the help that they need.
Mr. Speaker, I urge support for this bill, and I yield back the
balance of my time.
The SPEAKER pro tempore (Mr. Taylor). The question is on the motion
offered by the gentleman from Michigan (Mr. Barrett) that the House
suspend the rules and pass the bill, H.R. 2591, as amended.
The question was taken; and (two-thirds being in the affirmative) the
rules were suspended and the bill, as amended, was passed.
A motion to reconsider was laid on the table.
____________________